0730.00, Bureau Response to Active Violence Incidents
Refer:
• Federal Emergency Management Agency (FEMA) National Incident Management System (NIMS), 3rd Edition, October 2017
• DIR 0210.21, Leaves from Service
• DIR 0220.40, Lawsuits and Claims
• DIR 0240.10, Line of Duty Death
• DIR 0311.30, Off Duty Responsibility of Officers
• DIR 0416.00, Critical Incidents
• DIR 0505.00, Employee Assistance Program
• DIR 0600.00, Air Support Unit Operations
• DIR 0612.00, Communication Technology and Procedures
• DIR 0620.00, Body-Worn Camera Use and Management
• DIR 0630.05, Vehicle Intervention and Pursuits
• DIR 0630.10, Driving Responses
• DIR 0630.15, Foot Pursuits
• DIR 0630.40, Medical Service Policy
• DIR 0630.45, Emergency Medical Custody Transports
• DIR 0630.70, Mobile Audio Video Procedures
• DIR 0631.10, Dead Body Procedures
• DIR 0631.30, Cooperation with Other Agencies
• DIR 0631.35, Press/Media Relations
• DIR 0640.02, Photography and Digital Imaging
• DIR 0640.45, Crisis Response Teams
• DIR 0700.00, Bureau Response to All Hazards Using the National Incident Management System (NIMS)
• DIR 0720.00, Special Emergency Reaction Team (SERT) and Crisis Negotiation Team (CNT) Use
• DIR 0740.00, Explosive Device Incidents and EDU
• DIR 0900.00, General Reporting Guidelines
• DIR 0905.00, Non-Force After Action Reporting
• DIR 0910.00, Use of Force Reporting, Review, and Investigation
• DIR 1010.00, Use of Force
• DIR 1010.10, Deadly Force and In-Custody Death Reporting and Investigation Procedures
Definitions:
• Active Violence: An incident involving an armed person(s) who has the ability and intent to use or has used deadly force on other person(s) and continues to do so while having unrestricted access to additional victims. These incidents include circumstances under which the threat of deadly force may include, but are not limited to, a suspect’s use of knives, firearms, vehicles and/or explosive devices.
• Contact Element: The officer(s) at the scene of an active violence incident tasked with locating the suspect(s) and stopping the threat.
• Incident Commander (IC): The individual responsible for on-scene incident activities, including developing incident objectives and ordering and releasing resources. The IC has overall authority and responsibility for conducting incident operations and is responsible for the management of all operations at the incident site.
• Incident Management Zones: Designated areas that denote the level of threat that exists during an emergency response.
o Hot Zone: A geographic area, consisting of the immediate incident location, with a direct and immediate threat to personal safety or health. All violent incidents are considered hot until law enforcement determines otherwise. Only law enforcement should operate in the hot zone.
o Warm Zone: The geographic area of operation that has been cleared of any immediate safety threats and has security measures in place. This is an area where a victim staging area may be established and life-saving medical care will be provided.
o Cold Zone: A geographic area where first responders can operate with minimal threat to personal safety or health.
• Mutual Aid: A formal or informal agreement that allows for an exchange of services, personnel and/or equipment between agencies. This may include, but is not limited to the following: fire, police, medical and health, communication and transportation.
• Rescue Task Force (RTF): A team consisting of Portland Fire and Rescue (PF&R) paired with law enforcement officers. RTF personnel are tasked with initial treatment and triage of victims in the warm zone. Law enforcement officers are assigned as the protection for this team and should not separate from PF&R personnel.
• Reunification Center: A location where people being evacuated go to receive support and information and reunite with family. Members assigned here also help identify people who were impacted by the incident.
• Unified Command (UC): A structure that brings together the Incident Commanders of major organizations involved in the incident in order to coordinate an effective response, while at the same time allowing each to carry out their own jurisdictional, legal, and functional responsibilities. In this structure, there is no one single IC; the incident is managed by jointly approved objectives identified by participating organizations.
Policy:
1. The purpose of this directive is to provide protocols for assessing an active violence threat and immediately intervening to limit serious injury or loss of life during such incidents.
2. Active violence incidents pose an ongoing deadly threat to the safety of individuals present at the site of the incident and the community at large. Therefore, it is the policy of the Portland Police Bureau (PPB) to require immediate, reasonable action by its members at the scene of active violence incidents, including the objectively reasonable use of force, to achieve three primary goals: account for the threat, prevent access to additional potential victims, and rescue injured victims.
Procedures:
1. The Bureau shall use the national, standardized, and exhaustive system established in the Incident Command System (ICS) to plan and manage significant incidents and events. Members shall refer to Directive 0700.00, National Incident Management System (NIMS) and Incident Command System (ICS), for specific guidance regarding incident management.
1.1. Depending on the scale of the active violence incident, the individual IC’s role in handling the command function of ICS may be expanded into a UC. UC shall be established as soon as possible if there are multiple agencies with functional or jurisdictional responsibility involved in a collective response effort.
2. Member Response when Notified by the Bureau of Emergency Communications (BOEC) of an Active Violence Incident.
2.1. Based on available information, members first arriving at the incident scene shall attempt to verify that an active violence situation exists through information provided by communications personnel; from persons confined within or exiting the target location; from witnesses; by reports or indicators of active violence; or through related means.
2.2. As time and resources permit, members on-scene shall ask witnesses or others for any detailed information about the incident so they can form a tactical response to locate the suspect(s). Members on-scene shall communicate information gathered and broadcast their situation over the radio to inform responding members.
2.3. Member Involvement in Contact Element(s) Response.
2.3.1. The primary objective of the Contact Element is to locate and account for the threat(s).
2.3.1.1. Multiple Contact Elements may be needed to locate the suspect(s) and account for the threat(s).
2.3.1.2. Even if the threat seemingly has been terminated, Contact Element(s) are required to render the location safe and assist in the screening and orderly evacuation of persons to a designated area, locating any other persons still in hiding.
2.3.1.3. After accounting for the threat(s) and clearing the location, Contact Element(s) shall shift their objective to rendering medical aid to injured victims.
2.3.2. Members shall conduct a search for suspect(s) and/or injured persons even in the absence of clear indicators.
2.3.3. When feasible, the Contact Element(s) shall attempt to provide a clear communications channel to supply the following information:
2.3.3.1. Actions and description of the suspect(s), and
2.3.3.2. The location and number of victims, and their medical needs.
2.3.4. Additional officers may be necessary to clear the location of potential suspects, locate and evacuate persons in hiding, establish Incident Management Zones, and assist with reunification or other objectives assigned by the Incident Commander.
3. Individual Member Intervention Prior to Being Notified by BOEC of an Active Violence Incident.
3.1. In some instances, an individual member may be present in or near an active violence location (e.g., a mall or school). Whether on or off duty, in uniform or civilian clothes, the member may determine that immediate action is necessary and reasonable to account for the threat(s). However, the member must first consider whether they are capable of effectively intervening based on their training, equipment, and fitness for duty (e.g., physical injury or impairment/intoxication when responding while off duty).
3.2. When displaying firearms while in plainclothes, members shall, if feasible, verbally identify themselves as law enforcement officials, and clearly display their badges and/or other law enforcement identification to alert security personnel, arriving members, or civilians who may be armed.
3.3. When tactically feasible, members shall notify BOEC that an active violence situation exists. The member(s) should provide the following information and updates as available:
3.3.1. A description of the suspect(s);
3.3.2. Any known (and type) of weapons used;
3.3.3. General location of the suspect(s); and
3.3.4. An estimated number of victims.
4. Incident Commander (IC) or Designee Responsibilities.
4.1. The IC or designee shall, when feasible:
4.1.1. Work with Contact Elements to designate Incident Management Zones and update the zones as appropriate.
4.1.2. Ensure the Special Emergency Reaction Team (SERT) is activated in accordance with Directive 0720.00, Special Emergency Reaction Team (SERT) and Crisis Negotiation Team (CNT) Use.
4.1.3. Ensure the Explosives Disposal Unit (EDU) is notified in accordance with Directive 0740.00, Explosive Device Incidents and EDU, if there are confirmed or suspected reports of explosive devices present at the incident site.
4.1.4. Direct arriving tactical, or other officers, to help clear the location of potential suspects, locate and evacuate persons in hiding, render safe any dangerous munitions or armament, or assist with other objectives.
4.1.5. Establish an incident command post and assign a recorder to document actions.
4.1.6. Organize and establish unified interagency communication(s) with other essential agencies responding to the incident scene such as Portland Fire and Rescue (PF&R), Emergency Medical Services (EMS), and other law enforcement agencies.
4.1.7. Establish an inner perimeter to control access to, and egress from, the area of risk.
4.1.8. Establish an outer perimeter.
4.1.9. Ensure both inner and outer perimeters allow for traffic control and the ingress and egress of public safety vehicles. Special consideration should be given to maintain open routes for rapid transport of the injured.
4.1.10. Ensure the following areas are established in the cold zone, notifying BOEC of their location and assigning members to each:
4.1.10.1. A staging area for responding members and other emergency personnel;
4.1.10.1.1. A staging area manager designated by the IC shall brief arriving personnel, maintain communication with the Contact Element(s), and assign duties as directed by IC or designee.
4.1.10.2. An exchange point for medical evacuation by ambulance or medevac.
4.1.10.3. An evacuation area where individuals without injuries should be directed for identification and debriefing.
4.1.10.3.1. Members assigned to the evacuation area shall maintain accountability of the individuals involved in the incident by documenting their identities until they can be reunited with family or others. Victims and witnesses suffering from emotional and/or physical trauma or shock should be directed to medical or mental health professionals, if feasible, so they can be kept under observation until they are safely transported to a hospital or home in the care of family or friends.
4.1.10.4. A Reunification Center to accommodate arriving family members and/or friends of persons at the incident scene;
4.1.10.5. A Joint Information Center staffed with appropriate personnel, such as public information officers.
4.1.10.6. A media staging area to accommodate media arriving on-scene.
4.2. Request Mutual Aid, if necessary.
4.3. Contact appropriate aviation resources to control air space for possible medical evacuation resources and to establish restricted air space for law enforcement use only.
4.4. Request emergency medical assistance.
4.5. Ensure that only sworn members enter a hot zone.
4.6. Coordinate with PF&R to deploy a Rescue Task Force(s) (RTF) to establish warm zones, as appropriate.
4.7. Initiate intelligence gathering on possible suspects.
4.8. Coordinate with owners or officials of the target location for floor plans; site layout; and a roster, including emergency contact information as available, of employees, students, residents, visitors, or others believed to be on-site.
4.9. Coordinate with investigative units to ensure the scene is properly preserved once the event enters the criminal investigation phase.
4.10. Write an After Action in accordance with Directive 0905.00, Non-Force After Action Reporting, or 0910.00, Use of Force Reporting, Review, and Investigation, if force was used.
4.11. For incidents involving uses of deadly force, death as a result of member use of force or an in-custody death, members shall adhere to reporting and investigation requirements set forth in Directive 1010.10, Deadly Force and In-Custody Death Reporting and Investigation Procedures.
5. Reunification Center.
5.1. Depending on the nature and location of an active violence incident, the IC must determine whether to evacuate and transport uninjured victims and witnesses to another location. In circumstances where evacuation is necessary, the IC shall broadcast over the radio the need for the Portland Bureau of Emergency Management (PBEM) to establish a reunification center away from the incident area to reunite uninjured victims and witnesses with family and friends. The IC, or their designee, shall:
5.1.1. Identify a location in reasonable proximity to the incident area that has the capacity to receive the appropriate amount of individuals;
5.1.2. Identify a secondary location in the event the primary reunification center is overwhelmed;
5.1.3. Identify resources to adequately staff the reunification center(s);
5.1.4. Acquire or request transportation assets (e.g., TriMet buses, school buses, private charter buses) to transport individuals from the incident area to the reunification center(s);
5.1.5. Direct the evacuation and transportation of individuals from the incident area to the designated reunification center(s); and
5.1.6. Communicate with members and partner agencies positioned at the reunification center(s) on the status of evacuation and transportation of individuals from the incident area.
5.2. Members assigned to the reunification center(s) shall:
5.2.1. Direct vehicles transporting evacuated individuals from the incident area to a secure assembly area out of view of the check-in location for family or friends.
5.2.2. Establish a check-in location for individuals searching for family or friends involved in the active violence incident.
5.2.3. Greet and inform family and friends checking-in of the reunification process and request that they provide basic information of the individuals they are searching for so that members can identify and reunite the proper individual(s).
5.2.4. Reunify individuals from the secure assembly area with family or friends in a separate reunion area away from public view, when feasible.
5.3. Detectives assigned to investigate the active violence incident shall attempt to locate, identify, and interview witnesses while being mindful of how the incident may have impacted witnesses.
6. Community Notification.
6.1. The PIO or other designated individual(s) shall be responsible for ensuring appropriate information is distributed in a timely manner to the community. This may include:
6.1.1. Shelter in place warnings for nearby locations during active shooter situations;
6.1.2. Alerts to avoid the area due to heavy law enforcement activity and potential road closures; and
6.1.3. Specific directions for individuals who elect to visit the scene.
6.2. The IC, PIO, or other designated individual may communicate with BOEC to broadcast alerts through the Community Emergency Notification System.
7. Debriefing.
7.1. The Bureau shall schedule an informal debrief with all responding Bureau members to discuss the events as they unfolded in real time, as soon as reasonably practical, after the incident. The debrief should address the initial notification of and response to the incident, actions taken to neutralize the threat, and the search and rescue of injured persons.
7.2. As soon as reasonably practical, after the incident, the IC shall hold a formal debrief of the incident to discuss the overall response, tactics, staffing and areas of improvement. The debrief should include key supervisory member participants in the incident, as well as command staff representatives from the Training Division, Professional Standards Division, and the Chief’s Office.
7.3. The Bureau’s Employee Assistance Program (EAP) Coordinator shall schedule a Critical Incident Stress Debriefing for Bureau members involved in the incident as well as other personnel who were directly impacted (e.g., dispatchers, emergency medical responders). Members shall refer to Directive 0416.00, Critical Incidents, for additional information.
8. Training.
8.1. The Bureau shall provide initial and ongoing active violence training to all sworn personnel, including simulation exercises conducted in unoccupied buildings, and partnering first response agencies, where appropriate.
Effective: 3/20/2025
Next Review: 3/20/2027